There are probably many factors. One of the factors is even as fundamental as knowing what we mean by “functionally bilingual”, which is where our focus on the cadre came into place.
Another factor is that it's a real battle to even keep kids in French until they get to that age level, because there are all sorts of other pressures and reasons why they do not continue with French. One is that they don't see a future in it. If you have schools that don't even offer it in some jurisdictions, it means there's no impetus to continue. They don't know what to do if they want to continue in French at the university and college levels; there are no opportunities to do that, or limited opportunities; the opportunities are there but they're not aware of them; or they don't see it as a viable alternative. So we need to let kids know what is available and then increase the possibilities to continue.